1948 Working Party Report on Surplus Colonial Labour Employment

Establishment and Mandate of the Working Party

• The Working Party was officially established in $October, 1948$.

• Terms of Reference: The group was tasked to enquire into the feasibility of employing surplus manpower from specific Colonial territories within the United Kingdom. The dual purpose was to alleviate the United Kingdom's manpower shortages and to mitigate unemployment within the Colonies.

• Represented Entities: The Working Party included representatives from several major government departments:     - The Colonial Office     - The Ministry of Labour and National Service     - The Ministry of Agriculture and Fisheries     - The Ministry of Fuel and Power     - The Ministry of National Insurance     - The Ministry of Health     - The Home Office     - The Foreign Office     - The Treasury

• The group convened for a total of four meetings prior to the report.

• Primary Focus: Although the mandate covered multiple territories, attention was primarily centered on the West Indian Colonies due to the severity of their unemployment problems.

• Demographic Assumptions: The Working Party operated on the assumption that the majority of workers brought to the United Kingdom would be "coloured." The social and political repercussions of this factor were central to all discussions.

• Political Considerations: Success of these labor schemes was seen as potentially creating a favorable impression in the Colonies; however, the Working Party warned that failure would have a serious negative political effect, potentially causing more harm than if no arrangements had been made at all. Success was deemed a prerequisite for any undertaken scheme.

Demographic and Economic Crisis in the West Indies

• Unemployment Statistics (1943-1946):     - Jamaica ($1943$): The "experienced" labour force (referring to those previously employed) totaled $505,092$ individuals. Of these, $17.6\%$ were involuntarily unemployed. While recent indicators suggested a slight decrease, the figure remained extremely high.     - Other West Indian Islands ($1946$): In island colonies for which data was available, $4.7\%$ of a labour force totaling $455,985$ were involuntarily unemployed.     - Mainland Territories ($1946$): In British Guiana and British Honduras, the involuntarily unemployed accounted for $2.0\%$ of a labour force of $166,297$.

• Structural Causes of Unemployment:     - The previous condition of unsatisfied labor demand was replaced by surplus labor because economic expansion failed to keep pace with population growth.     - Agricultural Dependence: Most colonies rely on a few basic crops, with sugar being the most significant. The world sugar market prior to $1939$ discouraged expansion.     - Climate and Disease: Other crops were negatively impacted by market declines, hurricanes, and agricultural diseases.     - Subsistence Limitations: Subsistence agriculture could not absorb the population increase due to a lack of available arable land and a demographic shift/drift toward urban centers.     - Industrial Failure: Non-agricultural industries have not progressed at a scale sufficient to provide necessary employment.

• Population Growth Rates: The inflow into the labor market significantly exceeds wastage due to a high birth rate combined with a falling death rate. In many colonies, the natural increase is so high that populations are expected to double in $25$ to $30$ years.

• Proposed Solutions: Suggested remedies include the introduction of secondary industries and the long-term goal of reducing the birth rate.

Case Studies of Recent Caribbean Immigration: Windrush and Orbita

• The S.S. Empire Windrush ($June, 1948$):     - $492$ Jamaicans arrived at $Tilbury$ as unaided immigrants.     - The migrants were warned before departure of the difficulty in finding work and housing.     - Official Intervention: Due to the size of the influx, the government took special steps to assist.     - Skill Levels: Most arrivals were skilled or semi-skilled, facilitating the job-seeking process.     - Accommodation: Finding housing was extremely difficult; those without private plans were housed in the Deep Shelter at $Clapham\,South\,Tube\,Station$.     - Placement Success: Within three weeks, work was found for all $240$ men requiring it. They were placed in foundries, agriculture, and railways, and specifically employed as welders, carpenters, bricklayers, painters, and tailors.

• The S.S. Orbita ($September, 1948$):     - $108$ Jamaicans landed at $Liverpool$.     - Fewer difficulties were encountered compared to the Windrush because many of these migrants had pre-arranged their own plans.

• Summary of Recent Influx:     - Since $December, 1947$, approximately $800$ West Indians (mostly Jamaicans) reached the UK.     - This is in addition to a "usual influx" of stowaways, which reached $212$ from the West Indies during $1948$.     - Current Status: While statistics are lacking, the Colonial Office noted no serious negative repercussions, suggesting most are employed. However, unemployment is concentrated in $Liverpool$ and $London$, aggravating existing colonial unemployment in those cities.

General Employment Landscape in the United Kingdom

• Comparison with the "Westward Ho" Scheme:     - This scheme for European Volunteer Workers (E.V.W.s) began over two years prior when there was a demonstrable overall shortage in basic industries (coalmining, agriculture, building/construction, and textiles).     - Foreign Labour Totals: A total of over $180,000$ foreign workers have been allocated to undermanned industries, including:         - $80,000$ E.V.W.s         - $80,000$ former members of the Polish Resettlement Corps         - $15,000$ German ex-P.O.W.s         - $8,000$ Ukrainian ex-P.O.W.s

• The Shifting Market (1948-1949):     - Extensive re-deployment of domestic labor has occurred.     - Demand in building and civil engineering has contracted due to cuts in the Investment programme.     - Rising Unemployment: Registered unemployment among British workers rose from $331,477$ at the start of $1948$ to $375,713$ at the beginning of $1949$. This indicates very little remaining scope for foreign labor importation.

Legal, Social, and Economic Barriers to Integration

• Labour Control and Legal Status:     - Undermanned industries are generally unpopular due to low wages and unattractive working conditions.     - E.V.W.s: They are subject to stringent control under $Aliens\,Restriction\,Orders$. They sign undertakings to accept specific jobs and can be prosecuted or deported for leaving without permission.     - Colonial Workers: As British subjects, they are free from the labor controls imposed on aliens. They cannot be deported for leaving "essential" jobs.

• The Risk of Geographic Drift:     - There is concern that Colonial workers, finding life lonely in specific industrial areas (which lack large enough vacancies for group employment), would drift to seaport towns with existing colored communities. This would increase overcrowding and the burden on Public Funds.

• Financial Disincentives:     - The lowest subsistence level provided by the National Assistance Board (N.A.B.) for those in receipt of financial aid is significantly higher than anything unemployed colonial workers would have experienced in the West Indies.     - There is a fear that workers might drift away from essential tasks to live on these relatively generous N.A.B. rates, frustrating the purpose of the recruitment scheme.

• Social Resistance:     - While colored persons face no formal legal disabilities in the UK, the Working Party concluded that employers and industrial workers would likely look unfavorably upon the introduction of colored workers in factories or workshops where they have not previously been employed.